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PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC WEST PARK HOSPITAL, HORTON LANE, EPSOM A. 09/00971/RES Reserved Matters Application pursuant to Outline planning permission 02/00348/OUT for the redevelopment of the site for 369 new residential dwelling including 149 affordable dwellings, car parking, estate roads, vehicle access onto Horton Lane, emergency vehicle access onto Christ Church Road, formal and informal open space and landscaping. B. 09/00969/LBA Partial demolition, alteration and extension of the Grade II listed water tower to facilitate conversion into four residential units. C. 09/00968/CAC Demolition of a number of buildings and structures including parts of the listed water tower. STAMFORD Major Developed Site within the Green Belt, 19.04.10, 15.03.10 Conservation Area, Listed Building 15.03.10 PLANS AVAILABLE HERE Notes RECOMMENDATION (S) A 09/00971/RES APPROVE RESERVED MATTERS subject to the following conditions: (1) No part of the development shall be occupied until full details of both hard and soft landscape works for the whole development have been submitted to and approved in writing by the Local Planning Authority. No part of any individual phase of the development shall be occupied until the agreed landscaping works for that phase have been carried out as approved. These details shall include where appropriate means of enclosure, car park surfaces, details of vehicle and pedestrian access and circulation areas, gates, hard surfacing materials, lighting, bin and cycle storage. All soft landscaping in accordance with the scheme, when approved, shall be carried out within a period of twelve months from the date on which the development of each phase is commenced or shall be carried out in the first planting season (and seeding season) following completion of the relevant phase and shall be maintained for a period of five years, such maintenance to include the replacement of plants which die. Reason: In order to ensure a satisfactory form of development in the interests of visual amenity and the impact of the development on the surrounding area as required by Policies DC1, BE1, and NE7 of the Epsom and Ewell District Wide Local Plan (May 2000). Page 1 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC (2) Notwithstanding the details shown on the application drawings, the following details of the design of the buildings are not hereby approved: (a) The use of GRP clad dormer windows, UPVC windows and doors and artificial slate (b) The roof designs of the detached houses types S3L, S4W, S4WA and S4BA (c) The design of the front elevation of house type S4G, in particular the position of the semi-circular pair of windows (d) The position of the two storey bay window on the front elevation 2 of flat blocks C1-5. Prior to the commencement of development, amended details of the buildings to address the details set out in (a) to (d) above shall be submitted to and approved in writing by the Local Planning Authority. The development shall be carried out in accordance with the approved details. Reason: To secure a satisfactory appearance in the interests of the visual amenities and character of the locality, including the West Park Conservation Area, as required by Policies BE1, BE3 and DC1 of the Epsom and Ewell District Wide Local Plan 2000 and CS5 of the Core Strategy 2007. (3) Prior to the commencement of any phase of the development, details and samples of the materials to be used for the external surfaces of the development in that phase shall be submitted to and approved in writing by the Local Planning Authority. The development shall be carried out in accordance with the approved details. Reason: To enable the Local Planning Authority to exercise control over the type and colour of the materials so as to secure a satisfactory appearance in the interests of the visual amenities and character of the locality as required by Policies BE1 and DC1 of the Epsom and Ewell District Wide Local Plan (May 2000). (4) Prior to the commencement of the development, full details of works and measures to promote sustainability both during and after construction, to include a minimum of 10% of the total energy requirements to be provided from renewable energy sources, shall be submitted to and approved in writing by the Local Planning Authority. The development shall then be carried out and maintained in accordance with the approved details. The details shall include the installation of meters to monitor the energy output from the approved renewable energy systems. Reason: In order to promote sustainable construction and development in accordance with Policy CS6 of the Epsom and Ewell Local Development Framework Core Strategy July 2007. Page 2 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC (5) The development shall not commence until details of measures to avoid harm to reptiles, as outlined in the applicants’ Ecological Assessment dated December 2009 and to Epsom Common SSSI have been submitted to and approved by the Local Planning Authority. The development shall be carried out in accordance with the approved scheme. Reason: To conserve and enhance biodiversity as required by Policy CS3 of the Core Strategy 2007. (6) Any works to buildings where evidence of use by bats has been identified as shown in Table 1 of the applicants’ Executive Summary of Bat Survey Results and Mitigation dated April 2010 shall be carried out outside the period of May to August. Any works to buildings where evidence of defunct bat roosts has been identified as shown in Table 2 of the applicants’ Executive Summary shall be carried out under the supervision of a suitably experienced bat ecologist. Reason: To conserve and enhance biodiversity as required by Policy CS3 of the Core Strategy 2007. (7) Any works to the roofs of the retained buildings in the development shall not commence until details to provide for the access and use by bats, as outlined in the applicants’ Executive Summary of Bat Survey Results and Mitigation dated April 2010, have been submitted and approved by the Local Planning Authority. The development shall be carried out in accordance with the approved details. Reason: To conserve and enhance biodiversity as required by Policy CS3 of the Core Strategy 2007. (8) Before any works to trees identified in paragraph 3.4 of the applicants’ Executive Summary of Bat Survey Results and Mitigation dated April 2010 details of an arboricultural health and risk analysis, and an assessment of bat potential shall be submitted to and approved by the Local Planning Authority. The development shall be carried out in accordance with the approved scheme. Reason: To conserve and enhance biodiversity as required by Policy CS3 of the Core Strategy 2007. (9) The development shall not commence until bat and barn owl nest boxes have been erected in accordance with details submitted to and approved by the Local Planning Authority. The boxes shall be retained thereafter. Reason: To conserve and enhance biodiversity as required by Policy CS3 of the Core Strategy 2007. (10) The development works including ground preparation, demolition and construction; shall be carried out in Page 3 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC strict accordance with the agreed Arboricultural Methods and Materials Statement and Tree Protection Plan dated December 2009 as detailed in the supporting statement for the proposed development submitted by Landscape Planning LTD. Reason: To ensure satisfactory protection of trees in the interest of amenity and environmental protection as required by Policies CS1 and CS5 of the Local Development Core Strategy July 2007 and NE5, NE6, NE7 and NE8 of District Wide Local Plan May 2000. (11) Prior to the commencement of any development works including ground preparation, demolition construction and landscaping, a method statement is to be submitted to and approved in writing by the Local Planning Authority which sets out how the tree protection measures will be supervised and enforced on site. The method statement shall include; the details of the person who will be responsible for supervision of the tree protection, the level and frequency of inspections, and the means by which they will demonstrate that monitoring is carried out and enforced on site. The method statement shall be implemented as approved. Reason: To ensure satisfactory protection of trees in the interest of amenity and environmental protection as required by Policies CS1 and CS5 of the Local Development Core Strategy July 2007 and NE5, NE6, NE7 and NE8 of District Wide Local Plan May 2000. (12) Only tree work as listed under the preliminary management recommendations in the Arboricultural Methods and Materials Statement dated December 2009 submitted by Landscape Planning LTD and as amended by the Tree Removal Plan drawing number A6011/2.1/007 shall be carried out with the following exceptions:- Trees No T13, T29, T109, T105, T125, T133, T137 T239 G32 and the Lombardy Poplar within G14 shall not be removed – 2 Corsican Pines within G16 adjacent to plot S4W95 shall have the crowns raised to 5m ground clearance on the house side, the Leyland Cypress within G46 and G47 shall be felled and Oaks T6 and T20 should be pollarded not felled. Any other tree work in connection with the development work, other than removal of dead wood and fractured branches will require prior consent from the Local Planning Authority in writing. Reason 1) It is not considered that there is sufficient justification to fell those trees listed as exceptions above on the grounds that they are in a poor condition or incompatible with the development Reason 2) To exercise control over tree/hedge retention and surgery operations during the development of the site in the Page 4 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC interest of amenity and environmental protection as required by Policies CS1 and CS5 of the Local Development Core Strategy July 2007 and NE5, NE6 NE7 and NE8 of District Wide Local Plan May 2000. (13) Before development commences, a detailed schedule of all secondary windows to be obscure glazed shall be submitted to and approved in writing by the Local Planning Authority and the development shall then be carried out in accordance with the approved schedule. Reason: To ensure a satisfactory level of privacy in accordance policy DC1 of the Epsom and Ewell District-Wide Local Plan 2000. Informatives: 1 This permission is granted on the basis that the development either meets or does not significantly conflict with the relevant policies of the Epsom and Ewell District Wide Local Plan 2000, Local Development Framework Core Strategy 2007 and does not cause demonstrable harm to interests of acknowledged importance. The application was considered having taken account of all material considerations and all representations. The specific policies of the Local Plan and Core Strategy taken into account were GB7, GB8, NE2, NE5, NE7, NE8, BE1, BE3-5, BE11, BE19, DC1, MV8, HSG11, CS1-9, CS12, CS13 and CS16. 2 The applicant is advised that this planning approval only relates to the reserved matters referred to in Condition No.1 of the outline planning permission 02/00348/OUT and for the landscaping only to the landscape strategy. 3 The conditions above are in addition to those attached to the outline planning permission and the requirements of the associated Section 106 agreement. B 09/00969/LBA GRANT LISTED BUILDING CONSENT subject to the following conditions: (1) The development for which Listed Building Consent is hereby permitted shall be begun before the expiration of three years from the date of this consent. Reason: To comply with Section 18(1) (a) of the Planning (Listed Buildings and Conservation Areas) Act 1990 as amended by Section 52 (4) of the Planning and Compulsory Purchase Act 2005. Page 5 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC (2) Prior to the commencement of development, details and samples of the materials to be used for the external surfaces of the development shall be submitted to and approved in writing by the Local Planning Authority. The development shall be carried out in accordance with the approved details. Reason: To enable the Local Planning Authority to exercise control over the type and colour of the materials so as to secure a satisfactory appearance in the interests of the visual amenities and character of the locality as required by Policies BE1, BE11 and DC1 of the Epsom and Ewell District Wide Local Plan (May 2000) and CS5 of the Core Strategy 2007. Informatives: This permission is granted on the basis that the development either meets or does not significantly conflict with the relevant policies of the Epsom and Ewell District Wide Local Plan 2000, the Local Development Framework Core Strategy 2007 and does not cause demonstrable harm to interests of acknowledged importance. The application was considered having taken account of all material considerations and all representations. The specific policies of the Local Plan and Core Strategy taken into account were BE1, BE3, BE11, DC1 and CS5. C 09/00968/CAC GRANT CONSERVATION AREA CONSENT subject to the following conditions: (1) The development for which Conservation Area Consent is hereby permitted shall be begun before the expiration of three years from the date of this consent. Reason: To comply with Section 18(1)(a) of the Planning (Listed Buildings and Conservation Areas) Act 1990 as amended by Section 52 (4) of the Planning and Compulsory Purchase Act 2005 Informatives: This permission is granted on the basis that the development either meets or does not significantly conflict with the relevant policies of the Epsom and Ewell District Wide Local Plan 2000, the Local Development Framework Core Strategy 2007 and does not cause demonstrable harm to interests of acknowledged importance. The application was considered having taken account of all material considerations and all representations. The specific policies of the Local Plan and Core Strategy taken into account were BE1, BE3, DC1 and CS5. Page 6 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC Summary West Park Hospital was completed in 1924 as the last of the Epsom cluster of five mental hospitals. Outline planning permission for the redevelopment of four of the hospitals was granted in 1997 but West Park was not included. The hospital was designated in the Local Plan in 2000 as a major developed site in the Green Belt. The hospital closed in 1999. The NHS have disposed of the site but some parts of the site will remain in NHS use. The Council approved its own planning brief for the site in November 2003. The Masterplan to the brief amongst other things indicated the provision of 325 dwellings and a hotel/conference centre together with the one main point of access to serve the site. It also envisaged the retention and conversion of high quality buildings at the core of the former hospital within the West Park Conservation Area. Outline planning permission was granted in March 2007 for about 360 dwellings, hotel/conference facility and associated community building on a gross ground floor footprint of no more than 27,550 sqm; open space; main access on to West Park Road and emergency only access on to Christ Church Road (and planning permission in respect of all related on-site infrastructure, roads, drainage and other services). This application broadly followed the brief. The present reserved matters application which excludes the proposed hotel/conference facility site seeks approval of reserved matters (access, appearance, landscaping, layout and scale) for 369 new dwellings, car parking, associated open space and landscaping. The application does not seek to discharge other conditions of the outline permission. The development would include 220 private and 149 affordable homes equal to a 40% provision of affordable units. Old retained ward buildings in the “horseshoe” of structures on the southern edge of the site would be altered and converted to provide 95 private dwellings. The listed water tower would be extended and converted to provide 4 flats. The proposed layout follows the axial symmetry established by the retained buildings with a formal central layout which includes urban squares with retained trees. There would be a more irregular layout on the west side adjacent to a proposed parkland. The water tower would form a landmark in the development and would be a focal point on an access road that runs east west across the site and crosses a road running along the central axis of the site. The area of the site developed for dwellings would be about 0.57 hectare more than that of the outline permission with the additional area located on the west side of the site. This increase in developed area is judged acceptable due to the merits of the scheme overall and the constraints of achieving a viable development. It is judged that the proposals would have no greater impact than the existing development on the openness and character of the green belt. Page 7 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC The proposals would provide an attractive residential development which would have a good sense of place and would provide much needed affordable housing. It would accord with policy for the redevelopment of a Major Developed site in the Green Belt and with the aims of the West Park Brief. In parallel with this application the applicants have made a formal request to vary the S106 agreement that was attached to the outline permission. As the issues raised by this request are complex and involve several authorities, discussions are still ongoing and the request will be reported to a later meeting of the Committee. The issues do not have any direct bearing on the assessment of this application. Consultations The application has been advertised as for a major development and neighbours and consultees have been notified. At the date of this report letters of representation had been received from six residents, the Epsom Protection Society, the Epsom and Ewell Cycling Action Group, the Surrey Wildlife Trust, The Epsom Common Association and The Surbiton and District Bird Watching Society. The letters raise the following objections/concerns: Hope emergency access to Christ Church Road will only be used as such and will not be used as a shortcut, traffic generated should not be allowed to use Malden Rushett junction, unreasonable increase in congestion of local roads, existing road network cannot cope with the extra traffic, there should be proper cycle parks in development, details unclear about energy efficiency measures and use of renewable energy, buildings demolished on the south side (old office buildings) would leave an unsightly area (officer comment – these buildings are not shown for demolition), layout too complicated and more affordable houses should have been accommodated, ecological and bat surveys are out of date and inadequate, site of historic interest and should be photographed before the demolition, development not sustainable and there will be problems to meet recycling targets, should be no demolition of listed building. Epsom Protection Society – support the proposed extension and residential conversion of the listed water tower. Epsom Common Association – queries whether an Environmental Impact Assessment Survey has been carried out and if it covered bats and birds. Officer comment - The applicants have submitted ecological surveys which satisfactorily address the impact of the proposals on bats and birds. Epsom and Ewell Cycling Action Group – provision for cyclists and cycle routes inadequate, should be better links to Epsom Common and Horton Country Park. Officer comment - The roads on the site are likely to be lightly trafficked and their layout has been designed to minimise speed. For these reasons it is considered that there is no need for cycle paths in the development. The site would link on its east side to an existing bridleway to Epsom Common and to the north to existing bridleways in Horton Country Park. Surrey Wildlife Trust – applicant‟s bat survey not extensive enough and carried out at wrong times. The applicants have now carried out more extensive bat surveys of buildings and trees and Natural England have been consulted on these and raise no objection. Page 8 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC The Surbiton and District Bird Watching Society – comment that buildings on the west part of the site which are shown demolished could have barn owl nests and should be surveyed before demolition and mitigation carried out, concerns about impact on bats. Recommend conditions 6 to 9 to address their concerns. Natural England - no objection subject to conditions relating to visitor impact on Epsom and Ashtead Commons SSSI, the mitigation of any potential impacts on common lizard and grass snake populations measures to enhance biodiversity including improving roosting opportunities for bats in the retained buildings and bird nest boxes. Recommended conditions 5, to 9 address their concerns. Highway Authority – no objection. County Ecologist and Biodiversity Team Manager – no objection subject to mitigation measures. Conditions 5 - 9.have been attached to address this. Environment Agency – The Environment Agency have raised objection for flood risk and biodiversity reasons due to lack of information. The Agency is seeking to discuss its concerns with the applicants. Officer Comment - Whilst it is expected that the Agency‟s objections will not be resolved in time for the meeting they relate to the discharge of conditions Nos.18-24 of the outline permission and do not have any direct bearing on the details up for consideration under the reserved matters. Consequently, this application can be determined in the absence of the final details of an off-site drainage facility and the other information required under conditions nos. 18-24 Site and Surroundings The site which is approximately 2 km to the west of Epsom, covers 26.88ha, with an estimated 15ha to be available as net developable area. There are a number of existing buildings on the site, totalling 32,965m2 footprint. It is bounded by Christ Church Road to the south, open countryside to the west, Horton Country Park (a site of nature conservation interest) to the north and Horton Lane to the east. Beyond Christ Church Road lies Epsom Common, part of which is a Site of Special Scientific Interest. The hospital comprised an intensively developed core complex of buildings based on a horseshoe layout with outlying villas at the edge of this complex. Further buildings and extensions have been added over the period from the original construction in the 1920‟s up until the 1990‟s. The hospital closed in 1999. To the north of the application site lie „The Meadows‟ and the „New Cottage Hospital‟ which would remain open. Other healthcare uses will remain to the south of the site including offices and social club facilities. The tall brick built water tower located towards the northern part of the site is a major landmark and is a Grade 2 listed building. Part of the site was designated a Conservation Area in 1997 and this was extended in 2003 to cover the majority of the built part of the application site. The main hall of the hospital was damaged by fire about 5 years ago. Page 9 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC Details of a proposed Tree Preservation Order covering the site were sent in May 2002 to the agents acting for the Crown (owners of the site) seeking consent from the Crown for the service of the Order but the consent has not been received. In 2003 the majority of the trees were protected by the enlarged Conservation Area. The proposed layout of the site has been designed in consultation with the Council‟s Tree Officer with the compatible trees kept and a revised order is presented to this Committee. The current reserved matters application relates to a site that excludes the proposed hotel and conference centre that was part of the original outline permission. Background and relevant Planning History West Park Hospital was completed in 1924 as the last of the Epsom Cluster of five mental hospitals. Outline planning permission for the four other cluster sites was granted in 1997 for about 1500 dwellings and associated community and open space facilities. West Park is not covered by that planning permission. It is designated in the adopted Epsom and Ewell Local Plan (May 2000) as a Major Developed Site (MDS) in the Green Belt (GB). West Park hospital closed in 1999, but some parts of the site will remain in NHS use for the foreseeable future. 00/01157/OUT - Outline planning permission for up to 500 dwellings; 8,500m2. Hotel/conference facility; associated community uses; open space including access on to West Park Road and on to Christchurch Road (and planning permission in respect of all related on-site development including all infrastructure, roads, drainage and other services (amended proposal). Withdrawn “West Park Brief - approved by Environment Committee 19 November 2003. The masterplan to the brief indicated the provision of 325 dwellings on the site. The master plan also reflects the Council‟s commitment to restraining the physical areas of the site where redevelopment will be allowed to occur as advised in PPG 2 Para C6. The plan implies a building “envelope” beyond which no development will be allowed to occur. 02/00348/OUT - Outline planning permission for about 360 dwellings, hotel/conference facility and associated community building on a gross ground floor footprint of no more than 27,550 sqm; open space; main access on to West Park Road and emergency only access on to Christ Church Road (and planning permission in respect of all related on-site infrastructure, roads, drainage and other services) (Amended proposal received 3.3.2005)(Outline: means of access not reserved). Permitted March 2007. This outline permission was granted subject to conditions and an agreement under Section 106 of the Town and Country Planning Act 1990 requiring: (a) The provision of 40% affordable housing (b) The setting up and financing of a Community Development Trust (CDT) (c) The provision of public open space including play and recreational facilities and provision for the maintenance of this space and facilities with a payment being secured for its future maintenance Page 10 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC (d) That the developer uses all reasonable endeavours to procure that in respect of the Building Research Establishment‟s „EcoHomes‟ Standard the development shall be so constructed as to achieve a classification of “Excellent”(or “Very good” insofar as “Excellent” may not be reasonably achievable) (e) The use of combined heat and power or similar technology for the hotel and conference centre such that a minimum of 10% of the energy requirement is provided by renewable resources. (f) The provision of a community building (or commensurate sum) (g) A contribution to the Local Education Authority towards education provision (h) The provision of an hotel/conference centre (min. 120 beds and approx. 6500m2 footprint) within the development subject to securing a user by means of an agreed marketing strategy for a minimum period of 18 months (i) To secure agreed on and off-site highway works including: Various works for the provision and improvement to paths and facilities for pedestrians, cyclists and horse riders Provision of a right turn into the Epsom Common car park Provision of a lit shared cycle track and footpath from the Borough boundary to Malden Rushett A contribution towards junction improvements at Malden Rushett The carrying out of a feasibility study and preparation of a scheme for implementing a package of improvements along West Hill from Horton Lane towards Epsom Town Centre, including upgrading of existing footways, street lighting, tactile paving and crossing facilities, provision of side road entry treatments and other traffic management measures to improve facilities for the use of pedestrians and cyclists and improve highway safety (j) A Green Travel plan (k) Contributions towards: the provision of a bus service from and within the site to Epsom Town Centre the costs of providing all the necessary public transport infrastructure to serve the site including bus stops, poles, shelters, information systems, seating, lighting, bus bollards/barriers etc. the maintenance of any new pedestrian/cycle crossing equipment all public transport infrastructure, street furniture, street lighting, soft landscaping and retaining structures for a period of 15 years (l) The removal of above-ground pipes within the site. (m) A contribution to the Primary Healthcare Trust for provision of medical services Page 11 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC The S106 agreement dated the 27th March 2007 was between the Urban Regeneration Agency (English Partnerships), the Borough Council, Surrey County Council and the Royal Borough of Kingston Upon Thames. The applicants in a letter of the 22nd December made a formal request to vary the S106 agreement. As the issues raised by this request are complex and involve several authorities, discussions are still ongoing and the request will reported to a later meeting of the Committee. This outline application proposed about 360 dwellings on a residential developable area of 10.92 hectares. 09/00167/SCR - Erection of about 360 residential dwellings pursuant to outline planning permission EPS/02/00348/OUT - Application for screening opinion on whether the proposal is "EIA development" within the meaning of the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999. Decision -The proposals are not "EIA development" Current proposal This report deals with three separate but related applications. The first seeks Approval of Reserved Matters under the original outline permission for the redevelopment of this site, the second seeks Listed Building Consent for works to extend and convert the listed water tower into four flats and the third seeks Conservation Area Consent for various buildings and structures on the site within the West Park Conservation Area. The approval of reserved matters application, which excludes the proposed hotel/conference facility site, seeks the approval of details of access, appearance, landscaping, layout and scale for 369 new dwellings, car parking, associated open space and landscaping. The development would include 220 private and 149 affordable homes equal to a 40% provision of affordable units. Roseberry Housing Association would be the Registered Social Landlord for the affordable homes and these homes which would all be new build would be located in clusters principally in the central and eastern parts of the site. The old retained ward buildings would be altered and converted to provide 95 private dwellings. All the affordable dwellings would be constructed to a minimum of Code for Sustainable Homes Level 3 and the private to a standard known as Eco-homes “Excellent”. The different standards are a result of the requirements of the Housing Association and the Homes and Communities Agency. The unit type and tenure would be as follows: Dwelling type Private Affordable Total 1 bed 26 68 90 2 bed 69 57 130 3 bed 59 20 79 4 bed 55 4 59 5 bed 11 0 11 Total 220 149 369 The footprint area of the new and retained buildings within the application „red outline‟ boundary would be 22,596 square metres and the footprint of the existing buildings in the „blue line‟ area (the hotel/conference centre site) 4,314 square metres giving a total of Page 12 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC 26,910 square metres. This total is less than the footprint of 27,550 square metres stipulated in the outline permission. The applicants have calculated that the area that would be developed for the residential element of the scheme, including refurbished existing buildings is 11.49 Ha. This includes the section of highway between the site entrance and the junction with the access to the cottage hospital. This would result in a density of 32.1 dwellings per hectare. This is compatible with the agreed development brief and relevant Development Plan policies. The proposal shows the retention of the most attractive old ward buildings that have a horseshoe layout and formed the main edge of the complex of buildings of this former hospital. The new development follows the symmetry of these old buildings with a central road leading from the old administrative building north to an urban square and a new 4 storey block of flats. This block is close to the listed water tower (equivalent to nine domestic storeys in height) which adjoins the west side of the urban square. The water tower would be altered, extended and converted to provide four one bed flats. The main access road leads from West Park Road in the east corner of the site to run east west and passes through the central square to be visually terminated by a shallow crescent of six two and half storey houses. Other than the 4 storey block of flats mentioned above the development would have a mix of 2 and 3 storey buildings though some of these would have accommodation in the roof. Typically the highest buildings would be in the central and eastern areas of the site where there would also be more terraces and to the western edge the development would be less dense, lower, detached and semi-detached. The layout includes three green squares and the retention of the large open space in the north west corner of the site and other informal amenity areas. The green squares accommodate a large number of mature trees and these would be supplemented with additional planting as will the other areas of open space. There would be two local equipped play areas. Parking across the site would be at a ratio of 1.78 spaces per dwelling. Refuse storage would be provided for the flats in the development mainly by providing stores within the ground floor of those buildings but with a couple of outside stores in car park areas. Houses would store their bins to their rear with side passages so that they can be brought forward of the houses for collection. The proposals do not include the provision of a community building. The proposal is that there would be a commuted sum as a contribution for such a provision elsewhere to serve the development and the rest of the hospital cluster sites. The reserved matters application is supported by the following documents: 1. Planning application supporting statement 2. Design and access statement 3. Historic building appraisal and Conservation Area Report 4. Justification statement 5. Transport assessment and residential travel plan 6. Hydrology report 7. Visual impact assessment Page 13 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC 8. Arboricultural materials and method statement 9. Ecological assessment 10. Bat reports 11. Management statement 12. Statement of public consultation 13. Best practice and sustainable demolition and construction statement The applicants state that there has been no material interest in the conference hotel site despite over 18 months of marketing for this use. Whilst care home operators have previously expressed initial interest, there have been no serious enquiries or formal offers. They also say that an obvious and possibly the most viable option would be for an „all residential‟ conversion/ refurbishment. This site is excluded from the current application. Greenbank which is an existing building to the south of the hotel conference lies within the application site. It was originally proposed that this building be demolished to provide a proportion of the parking for the hotel/conference centre. There are no proposals for this building as part of the current application but it is understood that the applicants are exploring residential development of its site which would be the subject of a separate application. Policy The whole of the site is designated as a major developed site in the Green Belt and is therefore subject to all the policies that relate to such an area. The principles of the development now proposed have been established through the development plan, the approved West Park Development Brief and the outline planning permission. Other development plan policies relevant to the application: Epsom and Ewell District Wide Local Plan 2000 GB7 Major developed sites in the Green Belt – infilling NE2 Landscape NE5 New development (trees and hedgerows) NE7 New development –landscaping schemes NE8 Nature conservation and landscape DC1 General policy for development control BE1 Built environment BE3-5 Conservation areas BE11 Listed buildings BE19 Design of new buildings HSG11 New residential development MV8 Parking Core Strategy July 2007 CS1 Creating sustainable communities CS2 Green Belt CS3 Biodiversity CS4 Open spaces and green infrastructure CS5 The built environment CS6 Sustainability in new developments CS7 Housing provision CS8 Broad location of housing development Page 14 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC CS9 Affordable housing and meeting housing needs CS12 Developer contributions to community infrastructure CS13 Community, cultural and built sports facilities CS16 Managing transport and travel South East Plan 2009 SP5 Green Belts CC1 Sustainable development CC4 Sustainable design and construction CC6 Sustainable communities and character of environment CC7 Infrastructure and implementation T1 Transport – manage and invest T4 Parking Epsom „Hospitals Cluster‟ Conservation Areas: St Ebba‟s CA, Long Grove CA, Horton CA, The Manor CA and West Park CA. Character Appraisal & Management Proposals Draft January 2009 Planning Considerations This application relates to the details of a major development which has already been approved in principle. The fundamental issues have therefore already been agreed but it is necessary to consider a range of detailed issues about the design, layout and appearance of the scheme and the specifics of implementation. Development quantum The outline permission for the site is for „about 360 dwellings‟. Further to this, condition 25 of the outline permission states that exceeding this figure should be agreed by the Local Planning Authority. The current application is for 369 dwellings This increase is relatively insignificant and justified by: Aspirations to make best use of this previously developed site Good design solutions for the site including the retention of the best of the existing buildings in terms of their design and significance as part of original layout of hospital, the retention of trees and provision of urban open space Finding a beneficial use for the water tower with its conversion and refurbishment to provide four dwellings To ensure the scheme remains viable and deliverable given the prevalent challenging market conditions The delivery of much needed 149 affordable dwellings The Masterplan to the West Park Brief showed redevelopment largely confined to the area enclosed by the horseshoe of existing buildings by the retained NHS site to the north but with a small area of new development to the north west of the main area and to the west of the Meadows. The layout now put forward differs from the Masterplan in that there would be more developed area to the west and north west beyond the retained buildings. The reasons and the justification for this increase in the developed area are similar to those set out above for the increase in the number of dwellings. Page 15 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC Layout, design and character of the green belt The proposals have been designed to respect the original layout of the former hospital and to retain the symmetry of the historic layout of that hospital together with the retention and conversion of the most attractive original echelon buildings and the listed water tower within the conservation area. Three urban squares are proposed which incorporate mature trees and there are other informal areas of urban open space. A large number of trees would be retained in the layout and extensive additional landscaping is indicated. Full landscaping details are not yet available but these will be submitted in advance of the development. An additional condition will be required to secure this. The woodland of the parkland surrounding the site that is a major feature of the landscape and screening of the site would be retained. The proposals comprise a range of 2 to 4 storey buildings with the highest in the central area of the site and the lowest on the western edge by the parkland area. Only one 4 storey building is proposed, positioned next to the water tower. Three storey buildings have also been placed in proximity. This design solution is considered appropriate to provide a transition between building heights whilst ensuring that the properties surrounding the converted water tower are not dwarfed and that they hold their own integrity. Areas of the development on the west and north west edges of the site would lie beyond the edge of existing development on more open land within the site itself and beyond this by fields in the Royal Borough of Kingston. One of the areas of the development would also come closer to Christ Church Road. These areas are already screened from the outside of the site by existing landscaping and with proposed new landscaping indicated it is judged that they not have a greater impact on the openness and character of the green belt and views of the development from outside. The development would not lead to a major increase in the developed proportion of the site. Overall, the proposals would have no greater impact than the existing development on the openness and character of the green belt as they would not exceed the height of existing buildings, would not exceed the existing footprint and would not lead to a major increase in the developed proportion of the site. The proposals would thus comply with Local Plan Policy GB7. The proposed site layout has been designed to ensure there is good permeability across the site which connects up with routes leading away from the boundaries. The principal route leads from its entrance off West Park Road to an east west avenue with a route around a central square of development around which a bus service will run. Access into the various housing areas around the site is made from secondary routes with shared surface lanes. Leading on from the movement hierarchy of the site the applicants show the creation of four principal character areas: Retained buildings Urban core Urban edge Rural edge The buildings in the urban core would be predominantly terraced reflecting the style of the existing buildings. The character softens away from the urban core into the urban edge areas with the introduction of more semi-detached and detached houses. The rural edge Page 16 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC areas out to the western fringes of the site are predominantly where the large detached 3, 4 and 5 bed houses would be located and the layout is more spacious. The design of the new buildings is contemporary in part and more traditional in others particularly for the houses on the west part of the site. Elevations would be of facing brick with some use of rendered panels and tile hanging, and roofs of plain tiles or slate. The main brick used is shown to be red which follows the red brick of the retained existing buildings. Yellow brick is shown in the area close to the listed water tower which is mainly built of a yellow brick. The application refers to the use of man-made slate even on the retained buildings. These existing buildings which are in a Conservation Area are roofed at present with natural slate and it is considered that the use of the man-made material is not acceptable. A condition is recommended requiring details of the external materials which makes it clear that the use of man made slate for the retained buildings is not approved. It is also considered that more than one yellow and one red brick should be used to provide some variety throughout the development. The listed water tower would have a proposed 8 storey extension of a modern design in facing brick and curtain wall glazing to provide a staircase and lift to facilitate its conversion into four one bedroom flats. Additional narrow windows would also be inserted in the street- facing elevation to provide sufficient light to living space. A bin store is proposed within the base of the new access tower. These proposals to the listed building would be in keeping with its special architectural and historic character and would provide it with a beneficial use and thus secure its future. The proposals include the retention of a number of buildings, all of which make a positive contribution to the character and appearance of the West Park Conservation Area. However a large number of buildings are deemed to make little contribution to the overall setting and are proposed for demolition. Certain elements of the retained buildings, generally at the rear, are also proposed for demolition which would not affect their contribution to the conservation area and would facilitate a proper layout and their conversion. All these demolitions are the subject of the application for conservation area consent. The residential layout would provide a high level of natural surveillance throughout which will enhance the security and safety of the development. Privacy issues have been carefully considered in the development layout and the design of the blocks. However, there are some locations where some overlooking would be possible at distances of 11 metres or more. Here, it would be possible to employ obscure glazing to minimise any loss of privacy. A condition is proposed that seeks details of all windows to be so obscured. Some of the L-shaped blocks have little communal amenity space. However, given the generous provision of communal space across the scheme and the plenteous vegetation, the lower standard of provision is not such that sub-standard living conditions would be created on this site. All units would have access to adequate cycle and refuse storage. Overall, the layout of the development has been subject to many iterations and refinements in consultation between the applicants and the Council during pre-application discussions. Many detailed issues relating to tree protection, visual appearance, road layout and parking have been considered. The proposals reflect the output from that process and will produce a development of a high quality, utilising the best of the existing buildings and retaining most of the mature vegetation. Page 17 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC Landscape The proposals include the retention of the existing landscape setting of the site. The scheme proposes three urban squares and the retention and the enhancement of the large open space located in the north west corner of the site, known as the Parkland area and other informal amenity areas. The urban squares would accommodate a number of mature trees and these would be supplemented with additional planting and as would the Parkland and the remainder of the site. The applicant‟s tree survey identified 97 individual trees and 7 groups for removal for reasons of sound arboricultural management. 68 individual trees, 18 full groups and 3 partial groups are proposed for removal to allow for implementation of the proposed development. Trees to be retained on site would be protected and extensive additional planting is indicated to add to the fine quality of the landscaping of the site and to compensate for any felling. Ecology and biodiversity The applicant‟s ecology consultants have carried out surveys of the buildings on the site for bats. No active/ recently functioning bat day roosts were found. Small, active, bat night roosts/feeding perches were found. They advise that the buildings have low potential for any maternity bat roosts to be present. Emergence surveys of the buildings would be unlikely to find any significant roosts but may result in finding roosts of singleton bats. The presence of night roosts suggests that long eared bats must roost relatively close to the site. With regard to mitigation and opportunities for enhancement they suggest that the larger retained buildings could all be made suitable to support day roosting bats with the use of bat access slates and gaps under raised ridge tiles and that such measures would outweigh the possible impacts associated with the proposals. The consultants have also identified several trees that are proposed for felling due to their condition or to facilitate the development that have a potential for bat roosts or perches. They recommend that these trees be subject to an arboricultural health and safety risk analysis. If these trees are considered to pose and unacceptable high level of risk, they should be reviewed in conjunction with a licensed bat ecologist to verify if any measures can be taken to reduce that risk to an acceptable level. An old barn owl nest was found in Villa 1 and this could be mitigated by the provision of a suitable located nest box. Condition 9 is attached to address this concern Natural England have written to confirm that it is satisfied with findings of the applicants‟ ecologist for bats and owls subject to the mitigation measures recommended secured in appropriately worded conditions. It is understood that the County Ecologist and Biodiversity Team Manager has no objection. Natural England also recommends conditions relating to visitor impact on Epsom and Ashtead Commons SSSI and the mitigation of any potential impacts on common lizard and grass snake populations. Condition 5 is attached to address these concerns. Natural England recommend a condition requiring the applicants to carry out before and after visitor surveys of the Commons and appropriate contingency measures in proportion to any increase. It is considered that such a condition would be unreasonable and disproportionate. Page 18 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC Surface water strategy The applicants propose a Sustainable Urban Drainage System (SUDS) which would involve the discharge of surface water from the development onto Council land adjacent to the site, within Horton Country Park. This would create a pond on the site of a previous pond and a wetland area which would be beneficial for biodiversity and which would use the natural topography to effectively drain the site. Any SUDS scheme in the Country Park would have to be approved by the Environment Agency. Because the site is underlain by London Clay and the Environment Agency advises that the site has a shallow water table infiltration type SUDS are unsuitable within the application site. The Environment Agency have raised objection for flood risk and biodiversity reasons due to lack of information. The Agency is seeking to discuss its concerns with the applicants. It is not expected that the Agency‟s objections will be resolved in time for the meeting but, as drainage issues are to be determined under drainage conditions Nos.18-24 of the outline permission, their resolution does not affect the assessment of reserved matters under consideration here. Sustainability The application contains no details of works and measures to promote sustainability both during and after construction including how a minimum of 10% of the total energy requirements would be provided from renewable energy sources. The applicants have written to state that they are committed to providing at least 10% of the site‟s energy from renewable energy sources but are not in a position to submit details at this stage because they are keen to avoid submitting a sustainability strategy that is neither appropriate nor deliverable on the site. They state that they are in discussion with the Housing and Communities Agency and will submit an HCA approved Sustainability Strategy at a later date. (Recommended condition 4) In any case, the applicants are committed to achieving a high standard of sustainability in the design of the new housing as required by the Section 106 agreement which relates to Eco-Homes Standard “Very Good” or “Excellent” Highways Much of the existing road infrastructure of the site would be retained and improved. In particular this includes the curving road that skirts the southern edge of the site. The application accords with the approved highway access proposals established at the outline stage in the terms of an improved all purpose highway access via the existing roundabout on Horton Lane and an emergency access to Christ Church Road. A proposed new bus service will enter the site and circulate around the central square ensuring all the dwellings are well within the County Council guideline maximum distance of 400m. The roads of the bus route would have a width of 6.5m to accommodate their manoeuvres. The parking layout of the central square has been designed to minimise street parking that could hinder the progress of a bus. The retained NHS units to the north of the site will continue to have access from the access road along the north eastern boundary of the site. There would also be an access to this NHS site in the area of the „Meadows‟ from a road to the north of the water tower. Page 19 of 20 PLANNING COMMITTEE 09/00971/RES, 09/00969/LBA, ITEM 02 13 MAY 2010 09/00968/CAC Proposed parking across the site would be at an average of 1.78 spaces per dwelling. In total there would be 659 spaces on site, including 168 on plot designated surface spaces, 144 on plot garage spaces, 54 designated visitor spaces and 293 allocated off plot parking spaces. This provision is broadly in accord with the Planning Brief that outlined an overall average figure of no more than 1.5 spaces per dwelling and is in line with the Government‟s aim to reduce reliance on the use of the motor car. The roads on the site are likely to be lightly trafficked and their layout has been designed to minimise speed. For these reasons it is considered that there is no need for cycle paths in the development. Archaeology An evaluation of the site was undertaken and 63 trenches were excavated in October 2007. No archaeological deposits or features were found. The conclusion was that the site has very low potential for archaeological deposits. This is thought to be due to the low level of historic human occupancy and the recent construction on the site. A comprehensive archaeological evaluation of the site has been submitted and Surrey‟s Principal Archaeologist has confirmed that condition 14 (implementation of an archaeological scheme of work) of the outline permission can be discharged. Allotments The submitted layout indicated an area for possible allotments in the northern part of the parkland on the west part of the site. This area is shown close to the existing car park for the cottage hospital. Such a facility would clearly need vehicular access for allotment holders. The applicants have now confirmed that the NHS car park can not be used to service the suggested allotments and unfortunately, therefore, access cannot be obtained to service the allotments. The applicants also write that given the extensive constraints of the master plan, there are no other alternative locations on West Park where allotments could be positioned and they are currently of the view that although provision is desirable on the site, it is not deliverable at this time. The loss of allotment provision is regrettable but there is no requirement for this provision in the outline permission. Conclusions The applications before Committee address the requirements laid down in the Council‟s approved Development Brief and accord with the outline planning permission. They are fully in accordance with planning policy and would result in an acceptable development of the last Hospital Cluster site. The application for approval of reserved matters is acceptable in terms of planning policy for the redevelopment of a Major Developed Site in the Green Belt. The application for the listed water tower would be in keeping with the architectural and historic character of this landmark building on the site. The application for conservation area consent for the demolition of many of the buildings on the site is acceptable because the buildings of identified landscape importance are to be retained. All three are recommended for approval with proposed necessary conditions. Contact: Jacy Yates Page 20 of 20
"WEST PARK HOSPITAL_ HORTON LANE_ EPSOM"